Integrating Safety into Tribal Transportation Planning

presented to16th Annual Tribal Transportation SymposiumTransportation Planning TrackSponsored by the Affiliated Tribes of Northwest Indians &The Northwest Tribal Technical Assistance Program

presented byCraig Genzlinger, Tribal CoordinatorFHWA-MTforColleen Jollie, MPAWHPacific, Inc.360-918-5337

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Presentation Credits

Developed for the interagency Transportation Safety Planning Working Group

Developed by Cambridge Systematics Inc.• Contacts

− Susan Herbel (sherbel@camsys.com)− Audrey Wennink (awennink@camsys.com)− Sam Lawton (slawton@camsys.com)

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Overview

Why is Tribal Transportation Safety Planning necessary?

What is Transportation Safety Planning?

What role does data play in Transportation Safety Planning?

What are the products resulting from Transportation Safety Planning?

How can we fund the Transportation Safety Planning process and projects?

Summary – What have we learned?

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Transportation Planning

Promoting transportation safetyis a fundamental purpose of

transportation planning

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Issues Unique to Tribes

Tribal sovereignty

Jurisdiction in Tribal and non-Tribal lands

Confidentiality of data

Cultural identity

Tribal courts

State versus Tribal relationship

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Need for Tribal Transportation Safety Planning

Native Americans • Highest risk of motor-vehicle related death of all

ethnic groups• For ages 4 to 44, motor-vehicle related injuries

are the leading cause of death

From 1975 to 2002 fatal crashes on Indian Reservations increased 52 percent

78 percent of Native Americans fatally injured were not using safety belts (1999-2004, FARS)

57 percent of fatally injured Native American drivers were drinking (1999-2004, FARS)

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Fatally Injured Drivers by Race/Ethnicity and Blood Alcohol Concentration

Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.

100%

80%

60%

40%

20%

0%

Percent

White Black Native American Asian/PI Hispanic

No Alcohol <.08 BAC >.08 BAC

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Percentages of Drivers Killed with Alcohol by Sex and Race/Ethnicity

100%

80%

60%

40%

20%

0%

Percent

White Black Native American Asian/PI Hispanic

Male Female

Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.

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Fatalities (Age 5 and Older) in Passenger Vehicles by Restraint Use and Race/Ethnicity

Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.

100%

80%

60%

40%

20%

0%

Percent

White Black Native American Asian/PI Hispanic

Safety Belts No Restraints

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Safety Challenges for Tribal Communities

Road characteristics and maintenance

Data management

Occupant restraint

Alcohol

Law enforcement

Pedestrian crashes

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Road Characteristics and Maintenance

Most Tribal lands are in rural, isolated locations

Road maintenance on reservations is generally lacking due to under-funding

Rural reservation road data is often limited or outdated

Reservation roads often lag behind other road systems in design and safety standards

Traffic markings and signs are limited

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Data Management

BIA and Tribal police departments often do not have standardized system for collecting and storing crash data

Tribal traffic records are likely to be stored in multiple departments

Addressed in Data Module in detail

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Occupant Restraint

Low safety belt use rates• Overall, Native American safety belt use on reservations is 62

percent (2006) compared to a national average of 82 percent (2007)

• Child safety seat use is low – 27 percent (1999-2004, FARS)

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Alcohol Impacts & Pedestrian Fatalities

From 1982 to 2002, 65 percent of Native American fatal crashes involved alcohol, compared to the national average of approximately 47 percent

More than 50 percent of Native American drivers in fatal crashes were over the legal limit (>=.08 BAC) (1999–2004, FARS)

Pedestrian death rates are five to seven times the national average

Almost 70 percent of fatally-injured Native American pedestrians had been drinking at the time of the crash

There is a high incident rate of train – pedestrian fatalities, often resulting from alcohol usage

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Law Enforcement

Police resources are very limited• 2,380 BIA and tribal officers police 1.4 million Native

Americans on 56 million acres of land• About half of the number of officers per capita in other

American communities• Most reservations are rural and tribal members are located in

small isolated communities remote from the tribal headquarters

• Tribal/BIA police spend most of their time on law enforcement activities other than traffic enforcement

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Crashes Aren’t Accidents

Integrating Safety and Transportation Planning

Many crashes are preventable

Injury prevention is a public health issue

Transportation Safety Planning is critical to improving the safety and quality of life,

or even life itself,

for Native Americans

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SAFE-TEA-LU

SAFETEA-LU is the Safe, Accountable, Flexible, Efficient Transportation Equity Act – A Legacy for Users• Federal Transportation Reauthorization Passed in 2005

guiding transportation planning for 2005-2009• We are at the END of SAFETEA-LU

Increased emphasis on transportation safety planning

Section 148 of SAFETEA-LU mandates the development of a Strategic Highway Safety Plan (SHSP)

What about the NEXT-TEA?

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HSIP and HSP

Highway Safety Improvement Program (HSIP)• State plan for safety infrastructure improvements• Federally funded

State Governor’s Office of Highway Safety develops Highway Safety Plan (HSP)• Focus largely on behavioral issues, e.g., safety belt use and

impaired driving• Federal and state funding• In Washington State this is Target Zero.

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SHSP

State Strategic Highway Safety Plan (SHSP)• Addresses 4E’s: Engineering, Education, Enforcement and

Emergency response• Evidence based using at least traffic crash data• Focus on “emphasis areas” and strategies with greatest

potential payoff• Involves a wide range of stakeholders in the process

including Tribal Governments• Includes methods to measure performance

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Relationship Between SHSP Transportation and Existing Planning and Programming Processes

TIP(Metropolitan)

Statewide Transportation Plan (Long Range Plan)

Metropolitan Transportation Plans

State Strategic Highway

Safety Plan (SHSP)

HSIP(23 U.S.C.

§ 148)

CVSP*(49 U.S.C. § 31102)

HSP(23 U.S.C.

§ 402)

Statewide Transportation Improvement Program

(STIP)

Other State Plans

(e.g., Freight Plan, Ped/Bike Plan)

*CVSP -Commercial Vehicle Safety Program

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Best Practices

Identify safety as a major goal of the planning agency

Develop a multi-disciplinary safety management process, with an emphasis on roadway safety

Emphasize safety on all projects

Designate a safety champion/coordinator

Use current technologies (i.e., GIS and Internet)

Develop community-based traffic safety programs

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Best Practices (continued)

Comprehensive, e.g., the “4 E’s” of safety (Engineering, Enforcement, Education, and Emergency response)

Develop systematic and well-documented processes that can be sustained

Create a traffic records coordinating committee

Collect and use timely and accurate crash data

Select hazardous locations for corrective action

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Current Tribal Safety Planning Practices

Existing Tribal transportation safety plans and programs have been developed in partnership with agencies/programs including

• Federal Highway Administration (FHWA)

• Indian Highway Safety Program (BIA)

• Indian Health Service (IHS) Injury Prevention Program

• Tribal Safe Community Program (NHTSA)

• State DOTs and local governments

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Current Tribal Planning Practices

Examples of Tribal transportation safety projects• Public service campaigns and active enforcement of safety

belt laws and drunk driving• High school education programs on safety belt use and

bicycle safety• New legislation and enforcement of child safety seat use• Tribal funded and operated safety programs and campaigns

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Good Data is Fundamental

Basis for all plan development

Justification for funding

Benchmark changes

Develop priorities

Evaluate the outcomes

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Types of Data

Traffic and roadway data• Often available through county, state, and BIA files• Can be collected through field inspections (Road

Safety Audits) • Traffic counts can be found in the IRR inventory• Bridge inventories• Traffic sign inventories• Pavement condition inventories

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Types of Data (continued)

Motor vehicle crash data• Provides detail on each crash and individuals involved• Insurance Companies• Emergency Medical Services (EMS)• Medical Facilities• Helps identify contributing factors

− Safety belt use− Blood alcohol level− Roadway condition− Other contributing factors

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Types of Data (continued)

Geographic Indicators• Boundaries• Zip codes• Roadway logs• Milepost• Roadway Names/Intersection• GPS coordinates

Demographic indicators• Age• Gender• Tribal membership

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Basic Data Needs

Data recorded soon after crashes in a consistent format (preferably at the crash site) on approved crash reporting forms

Crash records defined consistently with (NHTSA and MMUCC) standards to allow for comparative analysis

Thorough record of each crash

Sharing of crash data between agencies to the fullest extent possible

Citation data and court disposition records (statistical only)

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Data to Identify Location and Severity of Crashes Navajo Nation Crash Location Analysis (2001)

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Data to Identify Location and Severity of Crashes Navajo Nation Intersection Crash Location Analysis (2001)

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Data to Identify Factors Contributing to Crashes Navajo Nation Contributing Factors Analysis (2001)

Acy CommunityRte

NumberNumber

Accidents Miles ADTAcct Rate Location BMP EMP

Percent Accidents by

Cause*

N32 Shiprock 64 166 1.0 6,520 23.2 NM64 btwn SW & NE Jct 22 23

N33 Tuba City 160 38 0.5 4,961 14.0 Fr AZ264 to Warrior Dr 321.9 322.4

N36 Window Rock 264 31 0.6 4,773 9.9

AZ264 fr N12 Jct to NM State

line 475.5 476.1

N36 Window Rock 264 65 1.9 4,287 7.3 AZ264 fr N112

Jct to N12 Jct 473.6 475.5 41.3% After Dark

N36 Window Rock 12 36 0.7 9,999 4.7

N12 fr AZ264 Jct to Shonto

Blvd23.5 24.2

N33 Tuba City 1011 16 0.8 4,034 4.5 Fr N1017 to Warrior Dr 0 0.8 37.5%

After Dark

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Data Considerations (continued)

Determine• Responsibilities for storage and maintenance• Standards for integrating data• Methodology for integrating data

Develop Tribal traffic records coordination committee

Establish Tribal policies on traffic records management• Internal data storage• Maintenance responsibilities

Consider NHTSA guidelines when developing a traffic records system

Improve communications between planners/engineers and law enforcement personnel on data needs

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Data Considerations

Data considerations/issues

• What data does the Tribe have?

• What data will be shared outside the Tribe?

• Who will have access to shared data?− Data in government databases is usually available to the public

• What are the purposes for using the data?

• How will the Tribe be involved in the process (i.e., oversight, reports, review?)

• What are the advantages or disadvantages to the Tribes in sharing data?

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Use of Data

Example –Menominee Reservation (WI) observational survey

of occupant restraint use

22 percent belt use

9 percent child safety seat use

Showed that transportation safety strategies should focus on occupant restraint

Colville Reservation: Changed , went from 36% Seat Belt use to 87% in one year.

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Roadway Safety Strategies

Fencing for roads with high rates of animal crashes

Street lights for roads with high crash rates after dark

Lighting and intersection design for intersections with high crash numbers

Access control for areas of development with high numbers of crashes

Sidewalks and pedestrian crossings for roads with high pedestrian crash rates

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Intersection Safety Strategies

Strategies to improve intersection safety• Better intersection design• Raised medians• Street lights in growth centers

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Products and Desired OutcomesTribal Plans and Programs

Tribes may develop their own Tribal plans including• Tribal Long-Range Transportation Plan (TLRTP)• Tribal Strategic Highway Safety Plan (TSHSP)• Tribal Highway Safety Improvement Program (THSIP)

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Products and Desired Outcomes

Tribal Safety Programs• Objectives

− Reduce the number of and severity of motor vehicle crashes− Decrease the potential for crashes

• Identify and address highway safety needs:− Unsafe highways− Impaired driving− Traffic records improvements− Child passenger safety education− NHTSA-sponsored Safety Assessments− Road safety audits

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Tribal Safety Programs (continued)

Tribal considerations• Utilize available Highway Safety Improvement

Program (HSIP) guidelines• Review and consider revising outdated Tribal

transportation and traffic codes in the THSIP plan• Develop THSIP plan in coordination with Tribal

transportation planning process• Coordinate with Safety Management System (SMS)

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Tribal Safety Programs (continued)

Tribal Transportation Safety Management System (SMS)• Federally mandated that BIA develop a SMS to address

safety on Tribal lands• Administered by BIA and FHWA with assistance from other

safety partners• Each Tribe is encouraged, but not required, to develop its

own SMS

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Tribal Safety Programs (continued)

HSIP is a state requirement• Requires a Strategic Highway Safety Plan (SHSP) be

developed• Annual report must be completed describing 5% of state’s

most severe safety locations• Annual reports required describing progress and

effectiveness of HSIP

Tribes are encouraged to develop their own HSIP in coordination with the state

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Highway Safety Improvement Program Eligible Projects

Intersection safety

Pavement and shoulder widening

Rumble strips

Skid resistant surface

Pedestrian, bicycle, disabled improvements

Railway-highway crossing safety improvements

Traffic calming

Safety conscious planning42

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HSIP Eligible Projects (continued)

Elimination of a roadside obstacle

Improvement in highway signage

Improvement in data collection and analysis

Work zone safety

Guardrails and barriers

Measures to reduce wildlife crashes

Signs at pedestrian-bicycle crossings and in school zones

Improvements on high-risk rural roads

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THSIP Development

Initiate development of THSIP

Determine whether a Tribe has a highway safety problem

Select funding sources

Plan for THSIP or safety project

Implement the THSIP based on this plan

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Model ProcessFlow of Activities

Task 1

Task 2

Task 3

Task 4

Tribal Council

Appoints THSIP Team

Preliminary Highway

Safety Assessment

Council Briefings on

Highway Safety

Programs

Council Decisions on Investigating

Highway Safety Programs

Process Ends or

Tribe Funds Own THSIP

Identify Potential

THSIP Benefits and

Costs for Tribe

Identify Tribal Actions

Necessary to Effectively

Compete for Funds

Identify Funding for Developing

THSIP or Safety

Project Plans

Preliminary Selection of

Funding Sources to

Pursue

Process Ends or

Tribe Funds Own THSIP

Prepare Scope of Work for Planning a THSIP

or Highway Safety Project Plan

Secure Funding for Development of

THSIP or Highway Safety Project

Develop Plan for THSIP or

Highway Safety Project

Establish THSIP/Safety Project Implementation Team

and Coordinator

Secure Funding and Technical Support for THSIP/Safety Project

Implementation

Implement THSIP/Safety Project per

Plan

Evaluate Safety

Project(s)

NO

YES

NO

YES

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HSIP Data Requirements

5% report of most dangerous locations• Methods should primarily be based on fatalities and

serious injuries

Determine if reporting will be problematic given existing capacity and data

Consider community concerns about potentially hazardous locations, even without crash history

Confer with the state DOT on hazardous roadway locations before project development (may preclude state questioning Tribal prioritization of hazardous locations)

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Products and Desired OutcomesTribal Long-Range Transportation Plan (TLRTP)

TLRTP development• Establish policy, goals, and objectives• Analyze transportation system conditions• Perform needs analysis• Set priorities• Establish funding plan• Develop the plan• Develop the program• Implement and monitor the plan

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FUN

DIN

G S

OU

RC

ES

Incorporating Safety into the Transportation Planning Process

LRTP

TTIP

IRR TIP

State TIP

Safety CommitteeInput

Tribal Council

Other Sources

Construct Project

Evaluate

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Transportation Safety Behavioral Approach

LRTP

TTIP

Safety CommitteeInput

Tribal Council

State Highway Safety Offices

Indian Highway Safety Program

State Department of Transportation

Other Sources

FUN

DIN

G S

OU

RC

ES

Implement Program

Evaluate

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IRR Transportation Planning Funds

“Up to 2 percent of funds made available for IRR each fiscal year shall be allocated to those Indian Tribal Governments applying for transportation planning pursuant to the provisions of the Indian Self-Determination and Education Assistance Act” (23 U.S.C. 204 (J))

In addition to the 2 percent set-aside, Transportation Planning is an eligible item that can be funded with a Tribe’s share of IRR funds

Some Tribes have fuel tax rebates that can be used for transportation planning.

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IRR Transportation Planning Funds (continued)

Administered by BIADOT and FHWA Federal Lands Highway Office

Available to Indian Tribal Governments for transportation planning on Indian lands

Tribes prioritize how IRR funds will be used at the tribal level

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IRR Transportation Planning Funds (continued)

Eligible activities include but are not limited to • Transportation planning• Tribal representation at transportation planning meetings• Preparation of application for funds from other sources• Planning related activities for other modes such as transit• Employment of a transportation planner• Research of right-of-way records for transportation planning

purposes• Other activities in a proposal that is mutually agreeable to the

Indian Tribal Government and the Secretary of the Interior

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IRR Program Funds

IRR Program Funding• IRR funds allocated to tribes from FHWA through the BIA are based

on a Tribal share formula determined from population and data in the IRR Inventory

• Priorities for construction and improvement of roads, bridges, and transit facilities leading to, and within, Indian reservations or other Indian lands are determined by the local Tribal government

• IRR funds may be used on any eligible transportation project or facility prioritized by the Tribal government consistent with Title 23

• IRR Program Funds may pay for the local match for many other fund categories

• A Tribe may use up to $35,000 or 5% of its IRR Program construction fund, whichever is greater, for transportation planning. However, BIA will subtract the exceeding amount from the Tribe’s CTC for the following year, if the Tribe exceeds this threshold

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NHTSA

National Highway Traffic Safety Administration (NHTSA) administered through the state Governor’s representative (safety only)• State and Community Highway Safety Grant• Intoxicated Driver Prevention Program• Alcohol-Impaired Driving Countermeasures Incentive Grants• Safety Incentive Grants for Safety Belt Use• Occupant Protection Incentive Grants• State Highway Safety Data Improvement Grants• Child Passenger Education Program• Research and Demonstration Grants• Training

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BIA Indian Highway Safety Program (IHSP)

Funded by NHTSA with BIA being considered as a state

Administered by BIA Office of Indian Highway Safety Program in Albuquerque• Programs include many of the same programs available to

states for Highway Safety• These highway safety funds are set aside in SAFETEA-LU for

Tribal governments the same as the highway safety funds are set aside to be allocated to states

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States

State funded and administered in some states • State Highway Funds • State Safety Funds• Transportation Loan Programs

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Other Organizations

Indian Health Services (IHS)• Injury prevention training • Motor vehicle crash reporting and analysis training• Fellowships for Epidemiology and Tribal Capacity

Other Federal departments such as Energy, Education, Housing and Urban Development, Agriculture, Justice, and Health and Human Services

Tribal funding• Tribal health programs• Fuel Tax Rebates

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Resources

www.fhwa.dot.gov/hep/tribaltrans/lrtpmod.htm

www.fhwa.dot.gov/hep/tribaltrans/saf_ack.htm

http://tsp.trb.org

http://www.fhwa.dot.gov/policy/ohpi/referral.cfm

http://www.planning.dot.gov/metro.asp

http://www.ltapt2.org/centers

http://tsp.trb.org/assets/Briefing%20Book%20hi-res.pdf

http://www.mmucc.us/